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County Outdoor Relief 
in California 


REVISED EDITION 1918 


Published by the 


d 0\ \ <a t »a .\ 

J 


State Board of Charities and Corrections 

995 Market Street, San Francisco 


1918 



CALIFORNIA STATE PRINTING OFFICE 
SACRAMENTO 

19 18 



378S7 






























#. 
















✓ 



















































_ y- n 










INTRODUCTORY. 


This bulletin aims to present the salient facts concerning the adminis¬ 
tration of public relief to the poor in their own homes in California. 

This form of relief (commonly called outdoor relief) is but one 
branch of the established public relief system. Preliminary to a dis¬ 
cussion of outdoor relief therefore it seems necessary and desirable to 
outline briefly the complete scheme of California poor relief. 

Such an outline will show the distribution of responsibility for the 
care of public dependents between the state and county governments on 
the one hand and between institutional and outdoor care on the other. 

The California Poor Relief System. 

The function of caring for public dependents in California is divided 
between state and county governments. This division may be shown 
thus: 


I. The State Government. 

( A ) Assumes the care of the dependent, 

(1) Insane (almost exclusively). 

(2) Blind (almost exclusively). 

(3) Feeble-minded (almost exclusively). 

( B ) Co-operates with the county governments in care of, 

(1) Orphans, half orphans, abandoned children ( who meet 

certain eligibility requirements and who can show 
‘‘evidence of need”). 

(2) Tuberculotics (who are cared for in county hospitals 

maintained at standard acceptable to State Board of 
Health). 


II. The County Government. 

(A) Assumes the care of the dependent, 

(1) Adults— 

(а) The aged, the sick, the unemployed or the other¬ 

wise incapacitated adult individual. 

(б) The nonself-supporting family. 

(2) Children—Those not eligible for state aid. 

(B) Co-operates with the state government in the care of, 

(1) Orphans, half orphans, abandoned children. 

(2) Tuberculotics. 

(County provides care for this class in county hospital. 
State pays county $3 per week, per patient, where 
hospital meets certain standards.) 


2-37687 


4 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


Methods of Relief. 

The public relief system consists of two branches: (1) institutional 
relief; and (2) outdoor relief. The relief administered by state and 
county governments differentiated as between institutional and outdoor 
may be shown thus: 


I. Institutional Relief. 

( A ) The state government, 

(1) Maintains, 

(a) Hospitals for the insane (six institutions). 

(b) Home for the adult blind (one institution). 

(c) Homes for the feeble-minded (two institutions). 

(2) Assists (by subsidies), 

(a) Private institutions, societies, and the counties in 

the care of orphans, half orphans and dependent 
children. 

(b) County hospitals (in care of certain tuberculotics). 

(B) County governments maintain, 

(a) County hospitals and infirmaries for sick and aged poor. 
(These are combined hospitals and almshouses, except 
in three counties where the two departments are in 
separate institutions.) 

II. Outdoor Relief. 

(A) State government grants outdoor relief only to, 

(1) Orphans, half orphans, abandoned children (who meet 
certain eligibility requirements and who can show 
“evidence of need”). 

(B) County governments grant outdoor relief to, 

(1) Adults, 

(a) The aged, the sick, or the otherwise incapacitated 

adult individual. 

(b) The nonself-supporting family. 

(2) Children, 

(a) Those eligible for state aid. 

(b) Those ineligible for state aid. 


COUNTY OUTDOOR RELIEF. 


5 


Cost of Public Poor Relief (1916-1917). 

1. Cost to state government. 

( A ) Institutional relief. 

(1) Hospitals for insane_$2,383,150 

(2) Home for adult blind_ 43,055 

(3) Home for feeble-minded_ 443,915 

(4) Subsidies to county hospitals_ 32,100 

( B ) Outdoor relief. 

(1) Care of dependent children_ 522,000 

2. Cost to county governments. 

(A) Institutional relief. 

(1) County hospitals and infirmaries_ 2,738,782 

(j B) Outdoor relief. 

All classes outdoor aid_ 1,200,441 


Grand total_$7,363,443 


Summary. 

The preceding outline shows briefly that California spent $7,363,443 
for the public relief of dependents during the year 1916-1917. Of this 
amount, $3,939,223 represents the expenditures of the counties while 
$3,424,220 was the amount spent by the state. 

The account given shows also that in the relief of public dependents 
the state government takes care almost exclusively of the blind, the 
insane, and the feeble-minded. It also helps orphans, half orphans and 
abandoned children and in certain instances grants subsidies to county 
hospitals for the care of tubercular patients. 

The responsibility of the counties in poor relief is that of the care 
of all other dependent classes not cared for by the state and, in addi¬ 
tion, co-operation with the state in the care of the orphan children men¬ 
tioned above. 

This is, in outline, the scheme of public poor relief in California. 
The remainder of this bulletin is a consideration of the facts with 
respect to the administration of county outdoor relief. 











6 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


GENERAL METHODS IN OUTDOOR RELIEF 
ADMINISTRATION. 

The State Board of the Charities and Corrections is the state agency 
for investigating and standardizing all county institutions and the ex¬ 
penditure of all public moneys for the care and maintenance of 
dependents and delinquents. In the discharge of this duty, it was 
found that while the expenditure of county funds for “outrelief ” 
(by which is meant relief in the home as distinguished from insti¬ 
tutional relief) was a very large item in every county, t Was 
administered in the least businesslike manner of any county 
work and that the money was spent in many counties without 
purpose, without system, without record, and without satisfactory 
results. An important step towards standardizing the outrelief 
administration was the passage of an act by the legislature of 1917 
whereby the State Board of Charities and Corrections was authorized 
to prescribe forms of relief records to be kept by the county. A con¬ 
ference of county officials was called to discuss present systems and the 
need for standard uniform records; to this meeting were invited county 
auditors, county clerks, county relief agents, and county supervisors. 
A fairly representative group attended the conference and on the basis 
of their suggestions and the experience gained by agents of the State 
Board of Charities and Corrections, a minimum record system was 
worked out and presented to the counties for their adoption and use. 
This record system includes a face card or history card, forms of appli¬ 
cation, investigator’s report, relief order, and index card. In many 
counties, the information needed for this record is not available and a 
campaign for better organization of the county relief work has been 
inaugurated. In order to suggest the most suitable and useful organi¬ 
zation, the state board has made surveys of the outrelief work in various 
counties and on the findings of such studies has made recommendations 
to the county board of supervisors for action. It has been found that 
the county authorities are willing to accept suggestions for improvement 
of county conditions and the individual county study in every instance 
has made for better understanding and co-operation between the state 
and county boards. The plan of study used by the State Board of 
Charities and Corrections in these county surveys is given herewith. 
In many counties the complete survey has been made, in others only the 
outrelief, county hospital and private social agencies have been studied. 
The extent of the study has been determined by local desires and condi¬ 
tions; the survey has included a great deal of educational work in the 
various communities leading up to the formation of progressive public 
sentiment for it is recognized that while the state board may inaugurate 


COUNTY OUTDOOR RELIEF. 


7 


a new movement the development and continuation of the work depends 
upon local efforts. 

General Outline of County Survey as Followed by Agents of the California 
State Board of Charities and Corrections. 

(A) County out relief. 

1. Organization and administration. 

2. Amount of aid given. 

3. Method of distribution. Nature of aid given. 

4. Investigation and supervision. 

5. Records. 

6. Case studies. 

( B ) County hospital. 

1. Buildings and equipment. 

2. Administration and management. Cost of maintenance. 

3. Care of inmates: (a) Custodial. 

(b) Hospital. 

4. Dietary. 

5. Records. 

6. Types of inmates. Case studies. 

( C ) County probation office and detention home. 

1. Administration and policies. 

2. Records. Case studies. 

3. Detention home: Buildings and equipment. 

4. Detention home: Dietary. Length of stay. 

5. Detention home: Segregation and supervision of chil¬ 

dren. 

6. Detention home: Education, recreation, discipline. 

7. Detention home: Types of inmates; case studies. 

(D) County jail. 

1. Administration and management. Cost of maintenance. 

2. Buildings and equipment. 

3. Dietary. 

4. Segregation and supervision of prisoners. 

5. Daily routine. Discipline. Occupation. 

6. Types of inmates. 

( E) Recommendations for improvement. 

1. County relief administration. 

2. County hospital. 

3. County detention home. 

4. County jail. 

( F ) Directory of private welfare organizations in county, with short 

report on objects and work of each, name of secretary, etc. 


8 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


The outstanding facts concerning the administration of public out¬ 
door relief in California, revealed by surveys made by the State Board 
of Charities and Corrections, are: 

(1) County governments are responsible for the public outdoor 

care of all dependents in California. 

(2) One and one-third million of dollars from county funds annu¬ 

ally for outrelief. 

(3) Wide variation in methods and results of relief administration 

exist among counties. 

(4) Twelve (12) counties do consistent case work in relief admin¬ 

istration. 

(5) Seven (7) counties do exceptionally good work in administer¬ 

ing outdoor relief. 

(6) Thirty-five (35) counties handle cases directly through county 

boards of supervisors under a procedure which is unsatis¬ 
factory. 

(7) Chaotic or meagre records of outdoor cases in over thirty (30) 

counties make it impossible even to get statistics as to num¬ 
ber of individuals aided. 

•(8) Dependent children are inadequately cared for in most 
counties. 

(9) State aid to orphans is not supplemented in many of the 
counties. 

The state law of California places the outdoor care of the poor under 
the jurisdiction of the county governments. It does not, however, 
prescribe the procedure which the counties must follow in administering 
the aid. 

A variety of methods have consequently arisen in the counties of the 
state. 


Need of Constructive Methods in Outdoor Relief. 

There are at present important weaknesses in the outrelief work of 
the counties. For the correction of these a constructive program is 
being suggested by the State Board of Charities and Corrections to 
include: 

(1) Relief officer or officers definitely appointed to administer the 

outdoor relief; such officers to be chosen on basis of training 
and experience. 

(2) Adequate investigation of every case, and 

(3) Proper supervision of all cases placed on the list. 

(1) The form of organization which should be behind the relief 
officer or officers would depend entirely upon local conditions. Only a 
thorough study of the county could determine exactly which kind of 
organization would be needed. 

(2) The second requisite, adequate investigation, implies investiga¬ 
tion which shows the real circumstances of the case. Adequate investi- 


COUNTY OUTDOOR RELIEF. 


9 


gation reveals whether the individual needs relief; what relief is needed, 
and what proportion of this relief it will be necessary to furnish out of 
public funds. 

(3) Proper supervision demands that every case receiving relief shall 
be visited at intervals sufficiently frequent to show what the result of 
relief given is. It demands that in every case, where it is possible to 
do so, a plan be devised for the establishment of the family on a self- 
supporting basis at the earliest possible moment, and that all relief given 
shall be with this plan constantly in mind. 

Using constructive methods after this fashion means social service in 
outdoor relief administration. Until county relief is established on this 
basis it can not do effective work. 


ADMINISTRATIVE METHODS IN CALIFORNIA OUTDOOR 

RELIEF. 

The study of the facts available shows that five distinct systems have 
developed in the state for the administration of outrelief. 

The types of administrative systems and the number of counties using 
each may be briefly shown as follows: 

(1) Outrelief administered by private charity societies acting as 

paid agent for the county—two counties. 

(2) Outrelief administered by county charity officers—four 

counties. 

(3) Outrelief administered by paid trained workers under the 

direction of an unpaid county department or commission— 
six counties. 

(4) Outrelief investigated by county probation officer, or other 

appointed agent—twelve counties. 

(5) Outrelief administered directly by county boards of supervisors 

without other investigation or supervision—thirty-two 
counties. 

(6) No outrelief given to adults—two counties. 

A brief description of each of these methods is necessary to a clear 
understanding of them. 


1. Public Relief Administered Through Private Agencies. 

The first method of poor relief administration is the one established 
in Alameda County; the same method is used for a portion of Santa 
Barbara County. 

In these counties the task of caring for needy persons has been dele¬ 
gated to private charities. Such societies act as agents for the county. 
The Oakland Associated Charities and the Berkeley Charity Organiza- 


10 STATE BOARD OF CHARITIES AND CORRECTIONS. 

tion Society, each of which is a private organization, administer the 
bulk of the poor relief in Alameda County. In children’s cases the 
Catholic Ladies Aid Society and the Daughters of Israel assist. 

This plan of administration is working out most satisfactorily. The 
trained employees, using accepted methods of work, investigate each 
case; give the special kind of help demanded and continue their friendly 
visiting as long as the case is on the charity list. 

2. Relief Administered by the County Charities Office. 

Los Angeles, Riverside, Sacramento and San Joaquin counties illus¬ 
trate the second method of outdoor poor relief in vogue in California. 
Each of these counties has created a county charities office. In this 
office the poor relief work of the county is definitely centralized. This 
office is responsible to the supervisors and to the county for the admin¬ 
istration of all outrelief funds. 

Los Angeles County, particularly, has started this method on a solid 
foundation. In the other counties the work is not yet so well developed. 

3. Relief Administered by Unpaid County Welfare Departments or 
Commissions Through Trained Social Agents. 

This system of outrelief administration has been evolved from care¬ 
ful study and experimentation in the field of public relief. The plan 
is still new but is working very satisfactorily in San Bernardino, 
Fresno, San Mateo, and Sonoma counties; San Diego and Humboldt 
counties are favorably considering the adoption of similar systems. The 
department or commission is created by the Board of Supervisors, which 
board delegates to this unpaid group of citizens the responsibility for 
investigation, supervision, and constructive treatment of the county 
in digents. Details of organization and of the powers and duties given 
the commission are not identical in the various counties mentioned 
but all follow one general plan, i. e., to take social service out of politics 
and to put into public relief methods all the successful modern ideas 
which have been tried out and approved by private charitable organ¬ 
izations. 

The members of the Welfare Department or Commission are 
appointed from among the most progressive and socially efficient citizens 
of the county; the office equipment and services of a trained social 
worker or workers are supplied from county funds. The reports of 
work done, investigations made, claims for relief and for expenses 
incurred are presented monthly to the Board of Supervisors for 
approval. In Fresno County two members of the Board of Supervisors 
are members also of the Welfare Department; this membership plan 
may be followed in the two counties mentioned who now have the ordi¬ 
nance under consideration. In San Bernardino, San Mateo, and Sonoma 


COUNTY OUTDOOR RELIEF. 


11 


counties the new board is known as the County Social Service Commis¬ 
sion and does not include in its membership any members of the Board 
of Supervisors. The various county boards of supervisors who have 
adopted this plan of handling the social service work of the counties, 
have found the new piece of county machinery very helpful in many 
ways. For instance, questions pertaining to county hospital and aim- 
house admissions, preventive health measures, supplementary aid from 
private sources, Red Cross Civilian Relief Committees, solicitations from 
the general public for philanthropic or war purposes, county dispen¬ 
saries, county clinics, county delinquency, recreation, etc., have been 
referred to the Welfare Department or Commission for study and 
decision. Fresno County is perhaps most unique in its organization and 
scope and in another part of this bulletin, special attention is called to 
the “Fresno plan.” 

4. Relief Administered by a County Agent. 

Twelve counties appoint an agent to investigate outdoor cases of 
county relief. This agent works directly under the Board of Super¬ 
visors and, as a rule, does not do very much constructive work, as no 
policy is marked out or standards set by the board. In Contra Costa, 
Butte, Imperial, Stanislaus, Napa, Tehama, Tulare, Marin, and Ventura 
counties the probation officer of the juvenile court acts as county indi¬ 
gent agent. Santa Clara, Orange, and Kern counties appoint a special 
agent who gives full time to the investigation and supervision of county 
indigents. For small counties having few cases, this method may be 
fairly satisfactory. In larger counties, however, it has been found 
that a single agent for the whole county, without a properly organized 
group of socially minded citizens to direct and help in the work, is 
able to do little more than investigate cases. The follow-up supervision 
and constructive work are necessarily slighted. 

5. Relief Administered Directly by County Boards of Supervisors. 

The most common method of administration is the one under which 
the county supervisors give relief directly to the poor in their own 
homes. In counties following this procedure, application for aid is 
made to the supervisor of the district in which the applicant resides. 
It is customary for the county hoard to follow the recommendations of 
this supervisor who may or may not have investigated the application. 
If aid is granted the name is placed upon what is commonly called “the 
county indigent list” for a definite amount of aid to be given each 
month, either for a specified time or until ordered removed by the 
supervisors. Two of the counties hold to the regrettable practice now 
almost universally discarded of stigmatizing their unfortunates by 
printing in the local newspapers the names of all aided individuals. 


3-37687 


12 STATE BOARD OF CHARITIES AND CORRECTIONS. 

The relief given consists usually of a monthly order on a grocer for 
supplies. The customary amounts allowed range from $2.00 to $25.00 
per month per person. One county has fixed the allowance to $8.00 
per month. In many cases the relief is given in cash instead of 
groceries, or it may be partly in cash and partly in supplies. Follow¬ 
ing are the counties which use this procedure in their outdoor relief 
work: Alpine, Amador, Calaveras, Colusa, Del Norte, El Dorado, Glenn, 
Inyo, Kings, Lake, Lassen, Madera, Mendocino, Mariposa, Merced, 
Modoc, Monterey, Nevada, Placer, Plumas, San Benito, Santa Cruz, 
Shasta, Sierra, Siskiyou, Sutter, Trinity, Tuolumne, Yuba, Yolo. 

The studies made show that this method of administering outrelief is 
very unsatisfactory. 

It is unsatisfactory because relief is too often given without complete 
and accurate knowledge of the facts of the case. 

Supervisors are busy men. They have a multitude of responsibilities 
in connection with the county government. Obviously, they can not 
secure intimate knowledge of the details of each poverty case; nor can 
they be expected to give the time necessary to work out the many prob¬ 
lems of a dependent family. 

This method, therefore, is a failure not only from the viewpoint of 
the proper treatment of the poor but it is also unsatisfactory to the 
taxpayer because it is wasteful—both of money and of human life. 
County funds are expended without exact knowledge of the real circum¬ 
stances of the cases aided. Thus, relief is frequently given when there 
are relatives who are legally liable and able to provide for the care of 
the dependent. 

The studies recently made by the State Board of Charities and 
Corrections have shown that many of the supervisors knew nothing of 
the people whom they were helping. Cases have been found of persons 
drawing aid from the county when they did not even live in the county 
helping them; other cases of shameful neglect of young children and 
infants have been located and brought to the attention of the county 
authorities. 

The records of relief cases in the counties using the above-mentioned 
method of administration have been found so chaotic and so incomplete 
that this board has never been able to secure statistics as to the number 
of individuals receiving relief from the county. In nearly 30 Cali¬ 
fornia counties today a taxpayer can not find out how many people are 
being supported out of the public funds. When it is considered that 
this most elementary information is lacking, the citizen is justified in 
wondering how little else is known of the people for whose care a large 
amount of money is being spent annually. 


COUNTY OUTDOOR RELIEF. 


13 


Furthermore, the money spent for relief under this procedure fails 
to make the dependent family self-supporting. This is the object 
of relief in present day charity. Since, however, careful plans for each 
case are not made this end is not accomplished. 

Relief procedure of this type, therefore, becomes stupid and unsatis¬ 
factory. It is subject to all manner of political abuses and is not 
infrequently used to further personal and political ends. In spite of 
these palpable weaknesses, 32 counties (spending over $250,000.00) 
administer outrelief after this time-serving and wasteful fashion. 

Outdoor Relief of Dependent Children. 

The preceding account characterizes briefly the general work of poor 
relief administration throughout the state. Thus far, however, nothing 
has been said with regard to one of the most important functions of the 
outdoor relief agencies—the care of dependent children. 

The regrettable fact is that, with few notable exceptions, county care 
at the present time is synonymous with county neglect so far as the 
welfare of dependent children is concerned. 

State and County Aid of Orphans. 

The law of California provides that “needy minor orphans, half 
orphans and abandoned children ’ ’ may receive state aid. Half orphans 
get $6.25 per month, whole orphans and abandoned children $8.33 per 
month. 

The authorization of state aid to orphans, half orphans, and aban¬ 
doned children is contained in the state constitution (Article IV, sec¬ 
tion 22) and in Chapter 323, Cal. Stats. 1913. Amended Chapter 472, 
Stats. 1917. 

According to the provision of these laws state aid may be paid: 
(1) to institutions caring for these children; or (2) to individuals 
(usually the child’s mother) providing this care. In both cases, how¬ 
ever, the care given must meet certain standards set by the state. 

It is the group of children who are at home with their mothers which 
constitute the chief outdoor relief problem in connection with orphan 
aid. 

The administration of state aid is now under the jurisdiction of the 
State Board of Control. In counties where offices or agents are main¬ 
tained for outdoor relief the applicant for state aid goes to such office 
or agent. The county office makes the initial investigation and either 
grants or denies the application. Claims against the state for relief 
given these cases are made semiannually by the counties. In this way 
the county recoups itself for the money spent for the aid of the orphans. 

All state aid cases, however, are subject to the investigation of the 


14 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


State Board of Control, which employs nine children’s agents to dis¬ 
charge this function. These agents have power after investigation to 
refuse state aid to cases which have been recommended by the counties. 

In counties where there is no agent for the administration of outdoor 
relief, the applicant for state aid goes to the county clerk or auditor 
who forwards the application to the Board of Control. Usually these 
cases are subject to but little investigation other than that made by the 
children’s agents of the State Board of Control. 

Alameda, Los Angeles and San Prancicso counties have made special 
provision for the administration of state aid and are doing this work 
perhaps more effectively than elsewhere in the state. These counties 
supplement the state subsidy; they have special agents for investigation 
and for constructive follow-up work. 

One of the difficulties met with in the administration of state aid in 
California is that of the failure of many of the counties to supplement 
the state subsidy. 

Chapter 323 (Stats. 1913) permits (but does not require) the counties 
to add to the state subsidy so that the relief given may be adequate. 
Without the county supplement the relief given to orphans is rarely 
ever adequate. The majority of the counties, however, do not grant 
this supplement. 

The result of this failure on the part of the counties is that the 
intention of state aid (to provide adequate relief for needy orphans) is 
as a rule defeated. 


County Aid to Children. 

The relief of the dependent child who is ineligible for state aid is 
solely a responsibility of the county. The majority of these cases rep¬ 
resent children in homes where the income (through illness, unem¬ 
ployment, desertion or some other failure of the breadwinner) has 
fallen below the minimum which will supply the necessities. 

The same method of administering aid which applies to other cases 
is used in children’s cases. Where there is no outdoor relief agent, the 
relief is granted directly by the boards of supervisors. In those coun¬ 
ties having charity offices or county agents the cases are handled by 
such office or agent. 

The total number of children aided by the counties is not known. 
Under the present method of county outrelief administration it is prac¬ 
tically impossible to ascertain the number accurately. The State Board 
of Charities and Corrections has attempted in vain to get state-wide 
figures which can be vouched for as accurate. 

The studies made of the outdoor relief during the past five years 
have shown conclusively that, with the exception of seven counties, this 
group of county aided children is as a rule inadequately cared for. 


COUNTY OUTDOOR RELIEF. 


15 


Fortunately, not all of California’s counties are guilty of such slack 
methods in their children’s relief. Alameda, Los Angeles, Fresno, San 
Bernardino, and San Francisco counties especially have developed this 
phase of their relief work to a high standard through the co-ordination 
of the activities of the juvenile courts and the public and private relief 
agencies. 


RELIEF ADMINISTRATION BY BOARDS OF SUPERVISORS. 

Thirty-two counties in California administer outdoor relief directly 
through the county board of supervisors. Studies made by the State 
Board of Charities and Corrections show that, except in counties having 
very few cases, this method is very unsatisfactory. The objections to 
this type of administration have already been stated. 

The defects of administration directly by boards of supervisors are 
concretely illustrated in a county recently studied. The survey made in 
this county (the name of which can not be given here) is included at 
this point to show precisely how this method of administration works 
out. The county cited is in no way an exceptional one. The same con¬ 
ditions are found in other counties where the supervisors administer the 
relief. The survey of this county follows: 

Survey of a County Administering Outdoor Relief Directly by the Board of 

Supervisors. 

1. Method of Application and Investigation. 

Every person desiring aid applies upon the proper printed form, 
which is to be signed by five taxpayers in the county and sworn to before 
the county clerk or a deputy. This application is granted or rejected 
by vote of the board of supervisors—the vote in each instance depend¬ 
ing upon the recommendation of the supervisor of the district in which 
the applicant resides. 

This petition does not give age, marital condition, occupation or defi¬ 
nite residence of applicant. It does not give any information as to 
members of the family. The item regarding relatives is seldom filled 
out and the addresses of the five citizens who sign the petition are 
usually omitted. It is impossible to find the actual residence of the 
applicant, in many cases, from a study of the petition. Petitions are 
filed in the office of the clerk of the Board of Supervisors. The proba¬ 
tion officer of the county investigates state aid cases and, upon request, 
county applications. He did not have any knowledge of about one- 
half the names on the list. There is no supervision of cases by the 
county. 


16 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


Supervisors do not know their relief cases but show a desire to learn 
the conditions. There is, apparently, no abuse of their powers in the 
granting of aid; on the other hand, there appears to be a tendency to 
spend as little as possible on the county dependents. This is, doubtless, 
based on a desire to save the taxpayers but it is a short-sighted policy. 
Inasmuch as no constructive or preventive work is being done, cases 
remain in the dependency class indefinitely and there is a natural cumu¬ 
lus which can not be reduced arbitrarily. A policy of retrenchment, 
therefore, creates hardships which outweigh any mercenary saving 
which may be effected. 


2. Records. 

Records of indigents are kept in the office of the county auditor. 
These consist of a book record where names are entered as received, and 
a card index. This record shows no social data, simply the name and 
amount of aid given. There are at the present time 91 county aid cases 
and 29 state aid cases, according to this record. 

It is not easy to get a count of the active cases; to do so necessitates 
going through the book register as well as the card index. It is not 
possible from the county records to ascertain the number of persons 
involved in the indigent list. No. 10, for instance, simply gives the 
name “John Doe” or “Mrs. Roe”; this may be a single old person 
living alone or it may be a widowed parent with a family of young 
children. The only means of getting at the facts is a personal investi¬ 
gation. In the time at the command of the state agent, it was impossible 
to visit every case, but about one-third of the list was visited with results 
as shown later on in this report under ‘ ‘ Types of Cases. ’ ’ 

Aid is distributed by means of warrants drawn on the county 
treasurer. 


3. Amount of Relief. 

The amount spent, during the last fiscal year, by this county for out- 
relief was $21,868.16. Average amount per case, $10.00, although this 
varies from $5.00 to $20.00. Three-fourths of the aid was given in cash, 
one-fourth in groceries and other supplies. Aid is given practically 
without supervision. Cases are aided after the need for relief has 
passed, even after they have moved from the county. Some of the 
individuals on the “indigent list” have sons or daughters or other 
relatives in the state who, if able, would be liable for support, yet no 
systematic attempt is made to ascertain the ability of these to help. 
The amount of aid given is determined in a purely “hit-or-miss” 
fashion without regard to the needs of the case. Reductions and 
increases are made in the same way. In many instances relief is inade¬ 
quate, especially in cases where young children are involved. 


COUNTY OUTDOOR RELIEF. 


17 


The present policy, or lack of policy, in administration of the county 
relief fails to remove cases from the list by way of restored health or 
self-support, and there is a natural increase in the dependency list from 
year to year as new cases are added. The cumulative expenditure which 
results from these two conditions can only be reduced by intelligent, 
constructive work on each case. The present county machinery con¬ 
tains no agency which is fitted to do this work. 


4. Causes of Dependency. 


The causes of dependency in this county, as shown by a study of the 
reasons given in the petitions for aid and verified in the cases of those 
visited, are as follows: 


Cause 

Number 
of eases 

Number of 
persons in 
family 

Old age 

33 ' 


Family desertion and nonsnpport, 

10 


Imprisonment of breadwinner 

1 


Death of breadwinner . „ _ _ 

3 


Ignorance of language _ _ .... ... ... _ 

1 

Unknown 

Til ness 

17 

Unemployment 

5 


Insufficient earnings _ __ .. .... _. _ 

8 


No cause given 

13 





91 



In some of the cases listed as dependent on account of “ insufficient 
earnings” and 4 ‘unemployment” or “no cause given,” the underlying 
cause was found to be illness either of the breadwinner or some member 
of the family. Neglected and continued illness is a drain upon the 
financial and the physical resources of the family and tends to render 
permanently dependent a family which, with adequate help over the 
hard place, might be restored to an independent place in the community. 
Setting aside all humanitarian reasons for constructive work in such 
cases, there remains the plain fact that it is good business to use every 
possible means of putting the family upon its feet and preventing con¬ 
tinued dependence upon the county. Another fact which must be con¬ 
sidered along with this showing of illness as a cause of poverty is the 
lack of medical care in the county hospital. The two items stand out 
very clearly in a survey of this county; (1) the lack of equipment and 
medical care by the county, and (2) the high percentage of cases on the 
indigent list from causes of illness. There is a close connection between 
ill health and poverty in all communities but here it seems almost 
startling in its suggestion as to the first move in the direction of remedy. 
The next important cause of dependency on the list appears to be that 
of family desertion and non-support. The location of the county in the 
fruit belt tends to seasonal labor. The men depend upon the fruit 




















18 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


picking and packing for employment and seem to drift away from their 
families. About one-third of the cases are those of old age; this, of 
course, is a permanent type and as the care of the old people in the 
county almshouse would cost the county as much if not more than the 
present system of aid in the homes and, at the same time, is not desired 
by them, no change in the handling of these cases is suggested. It might 
be possible in many instances to look up children or relatives of the old 
people who could contribute to their support or take care of them when 
they become infirm. 


5. Types of Cases. 

The 91 cases on the county list, at the time of this study, were of the 
following types, according to the statements on the petition for aid: 


Old age _ 33 

Family cases_ 39 

Single men and women_ 8 

Unknown _ 11 


91 

These cases were receiving regular monthly allowances in cash. It 
was impossible to learn from the county records or from county officials 
the exact number or even names and addresses of those who were 
receiving aid in groceries, yet this kind of aid was distributed to the 
amount of several thousands of dollars annually. The only way in 
which this information could be gathered would be to take the bills 
of the various grocers and go over the items month by month. These 
bills are endorsed by the supervisors, paid by the treasurer and 
charged to the county indigent fund; the name of the grocer, the 
number and amount of his bill, being the only items recorded. 

The 91 cases which were receiving cash aid at the time of this study 
had received aid for varying periods, as follows: 


Number of years 

Number 
of cases 

Aid received less than 1 year_ 

5 

Aid received 1 year_ _ 

qk 

Aid received 2 years_ 

oo 

IQ 

Aid received 3 years_ 

7 

Aid received 4 years_ 

< 

7 

Aid received 5 years_ 

i 

q 

Aid received 6 years_ 

o 

Q 

Aid received 7 years__ 

O 

A 

Aid received 8 years... 

ft 

q 

Aid received 9 years_ 

o 

i 

Aid received 10 years_ 

1 

1 

Aid received 12 years_ 

1 

o 

Aid received 17 years_ 

Z 

i 


1 

91 
























COUNTY OUTDOOR RELIEF. 


19 


During this study 48 visits were made to the homes of indigents with 
the result that' 34 were seen and 14 were not seen: 

Successful visits: 34 groups seen, comprising 101 persons. 


Ages of persons seen 

Under 

2 years 

3 to 6 

7 to 12 

13 to 16 

16 to 21 

22 to 40 

40 to 60 

Over 60 j 

Total 

4 

16 

28 

7 

2 

12 

11 

1 

21 

101 


Unsuccessful Visits. 

Moved away, address unknown_ 5 

Wrong address on list_ 3 

Not at home_ 2 

Not known in community_ 3 

Dead _ 2 

Re-married widow_ 1 

No address obtainable from list or from inquiry_ 9 


25 

In many of the homes visited, it was found that sickness was the 
underlying cause of distress; in others, desertion of the breadwinner; 
in others, again, the failure of children to support parents; while in a 
goodly number of cases old age, permanent physical or mental disability, 
or young children made the continuance of aid necessary. In a very 
few cases, hospital care seemed preferable. A few cases are quoted 
below to illustrate these various types, and the need for careful, con¬ 
structive supervision: 


Dependency due to illness or physical defect. 

1. Mrs. W. and three children. This family is a normal group of fair living stand¬ 
ards. Reduced to necessity of asking aid because of long illness of the husband and 
father which drained the family savings and resources and left the widow in debt. 
Neat home; children ages 3, 5, and 6 years, too young to allow mother to work 
outside the home. Own the house in which they live but no income and some 
debts. Woman feels husband might have been saved if helped in time. 

2. Mary R. This is a young girl whose eyesight was neglected until she was 
almost blind. Is now receiving $5 per month from county for the purpose of treat¬ 
ment. Has to go out of county for special treatment. Mother careless about taking 
the child to specialist. Needs oversight. Doctor says delay or neglect is dangerous 
to girl’s sight. 

3. J. W. and three children. This man is blind from effects of an explosion. He 
is not old, being midway in his forties, and of good physique. He owns some 
property and manages to do the cooking and keep house for the children. The 
children are all boys aged, respectively, 12, 13, and 14 years. Mr. W. and his 
wife are separated and she lives in another county. He can distinguish light from 
darkness and can even see some objects. He does not seem to think his sight can be 
improved. 

4. Mrs. H. and son 16 years old. The woman is not strong, has some bronchial 
trouble, but occasionally does some housecleaning for neighbors to earn money. Son 
is temporarily out of work because of an injury received when run down by an 
auto. Mother does not know how badly he may have been injured internally: The 

























20 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


owner of the auto paid hospital bill and bought the boy a new suit of clothes, 
taking from him a receipt in full for damages. The boy was discharegd from 
hospital but is unable to work. 

5. Mr. and Mrs. D. and two children. Mr. D. is a young man of about 36 years, 
but unable to work because tuberculous. Living in a tent house on the outskirts 
of a large town. Health officer of district says the man is careless and a menace 
to his family. County hospital is not equipped to give tubercular patients proper 
housing or care. 

6. Mr. and Mrs. P. Old couple living in a house owned by son. Came to Cali¬ 
fornia for health of a tuberculous son who .finally died. Took a daughter to Colorado 
Springs for the same illness, where she died. They spent everything they had on 
these children and have never got ahead. Now dependent upon the county and two 
married sons. Old man is not strong, has some chronic weakness; old woman 
recovering from a broken hip caused by a fall. Both are under doctor’s care. 

7. The S. family. This group consists of father, mother and seven children. 
The oldest child is 12 years of age. The parents are still young people, the father 
being 34 and the mother 30. The father is epileptic and has been partially paralyzed 
for two years. The man seems to be feeble-minded, but his wife claims this is the result 
of his illness. He was placed in the county hospital at one time but insisted upon 
being sent home. The presence of the man in the home takes much of the wife’s 
time and attention and there are so many young children that she is unable to 
give them proper care. The baby is but six months old. 

Cases of dependency due to family desertion. 

1. Mrs. B. and three children. Very neat, industrious young woman who is 
doing housework. The children attend school and the oldest (10) takes care of 
the younger until the mother comes home at night. The county is aiding this 
family, as the mother’s wages are not sufficient to provide shelter, food and clothing. 
The whereabouts of the father is unknown. 

2. Mrs. II. and five children. This family is having a hard time. The mother 
goes out washing and the county supplements her wages by a grant of $15 per 
month to keep the family together. They live in a plain cottage, rather bare and 
shabby. The oldest girl (12) mothers the younger ones during the mother’s absence. 
The father was a drinking man and deserted the family about two years ago. He 
had deserted before. The children seem to fear him. At the present time, they 
do not know wffiere he is. They are nice, bright children. 

3. Mrs. J. and 3 children. The father deserted this family some time ago and 
Mrs. J. did not seem anxious to have him return. He is said to have been a 
gambler and a drinking man. The family live at rather low standard and the earn¬ 
ings of Mrs. J., who takes in washing, are not sufficient to keep the family together. 
The county grants $15 per month. Mrs. J. rents one room which pays her rent. 

4. Mrs. B. and three children, all very young. She is working in a restaurant 
for $8 per week, leaving the children with her mother during the day. She is a 
very young woman, only 20, and seems anxious to keep her children with her. The 
county is aiding to extent of $17.50 per month. The husband never provided for 
the family, deserting every time a baby was born. He is now trying to induce his 
wife to return to him, but does not give any assurance that he will support the 
family. 

5. Mrs. D. and 2 grandchildren. The father of these children is dead and the 
mother deserted them, leaving her mother to support and care for them. She is 
said to have remarried and deserted her second husband. At present time her 
mother does not know where she is. The old woman is not in good health and the 
children are being aided by the county to the extent of $15 per month. 

6. Mrs. B. and one child, 2 years old. Mrs. B. is still a young girl and has 
never been trained to any kind of work which would enable her to earn a living 
She is now studying stenography and will probably be able to support herself and 
child in time. She lives with her mother, who goes out working by the day. 
Her husband deserted when the baby was very young and she does not know where 
he is. 


COUNTY OUTDOOR RELIEF. 


21 


Cases which could he better cared for in the hospital. 

1. Mrs. 1\., a woman of 80 years, who has a dreadful cancer on her face. She 
is in the same house with a daughter, two grandsons and a granddaughter. This 
granddaughter (17 years) is the only person in the house who will touch the old 
woman. The girl dresses the sore under the direction of the local visiting nurse. 

2. Mr. N., a blind man, 70 years old. He lives in a very dirty house and is 
very ill kept. He has made over his property to a Mexican woman who, in return, 
was to care for him during the remainder of his life. It does not appear that 
she does much for him and the county is giving $15 per month towards his support. 

3. Mr. S. of the family mentioned under head of “dependency due to illness.” 
The man is partially paralyzed, epileptic and his mind is affected. His presence 
in the home is a burden on the family and a menace to society, inasmuch as more 
children may be added to the family. Two children have been born since he became 
an invalid. 

4. Mrs. H., 81 years old. Very feeble old woman with no relatives in the state 
as far as known. Has been a woman of some standing and is very restless and 
hard to please. She is unhappy in her present home where she is boarded by the 
county for $15 per month. It seemed a very pleasant place in the country, but 
Mrs. H. claimed that she did not get proper attention and wants to get back to 
town. She has been in the county hospital but did not like it at all and begged to 
be sent out. She is becoming so feeble that a constant attendant will be necessary 
m order to insure her comfort and proper care. 

Old age where children might he made to contribute to support. 

1. Mrs. F. A woman of 70 years who has six children, 4 sons and 2 daughters, 
only one of whom gives her any help and that very irregularly. She has been a 
widow eleven years and is dependent upon the county and local charities. Is in fair 
health and does not -want to go to county hospital. County grants $10 per month. 

2. Mrs. C. and two children. Mrs. C. is a woman of 54 and is almost totally 
deaf. Her two youngest children are with her and receive county aid to the extent 
of $12.50. She has two sons and two daughters grown but they give her no aid. 

3. Mrs. B. Very old woman of 80 years, infirm. Has two sons unmarried with 
one of whom she lives. She is well educated and dreads the thought of the county 
hospital. The two sons should be able to provide for their mother. The county 
gives $10 per month, but Mrs. B. stated that she would relinquish this as soon as 
her sons had steady employment. 

Numerous other cases could be cited where the families or indi¬ 
viduals who are aided by the county are incompetent to manage their 
affairs without the assistance of a friendly visitor. The neglect to 
provide this sort of supervision results in a perpetuation of the diffi¬ 
culties and in continued cost to the county. 

As is the case in most counties where aid is given without careful 
investigation of the needs of each case, the family group suffers most. 
Single men and women frequently receive as much or more than families 
with several children, because the monthly dole is sent out without 
any personal knowledge of the number in family or conditions of need. 
Some old couples were receiving $8.00 each, making $16.00 relief for the 
group; at the same time the mother of a family of young children may 
be granted the same amount ($8.00) without regard to the difference 
in her situation and difficulties. The family group is a large factor in 


22 STATE BOARD OF CHARITIES AND CORRECTIONS. 

the county relief problem, and it is this group—the growing children 
that demands and repays constructive work. Good case work in many 
instances would eliminate cash aid to adults by substituting employ¬ 
ment, medical aid, or contribution to support from relatives. The lack 
of investigation and supervision also leads to the danger of abuse and 
fraud; persons who have removed from the county may continue to 
receive their warrants and cash them for months before the fraud is 
discovered. In five instances during this study, calls were made on 
persons whose names were on the active relief list only to find that they 
had moved away and that their present residence is unknown; nine 
names on the list were without sufficient address to locate them, they 
evidently called at the post office for their warrants which they received 
by mail, but they were unknown in the community. Two persons w r ho 
were on the county list were found to have died some time before the 
visit of the state agent; in one case neighbors said the man had been 
dead more than a month. No notice of these deaths had been received 
at the county office. 


COUNTIES USING CONSTRUCTIVE METHODS IN 
OUTDOOR RELIEF ADMINISTRATION. 

The administration of outdoor relief in the county cited represents 
a distinct type of relief procedure existing in California. Fortunately, 
however, not all of the counties follow the unsupervised dole method 
just described. Alameda, Los Angeles, Fresno, San Mateo, Sonoma, 
San Bernardino, and San Francisco counties are among the notable 
exceptions. These counties are doing more than granting material 
relief; they are working constructively by providing in addition skilled 
ministry to wants which are beyond the power of material relief to 
supply. They are using all public and private agencies to upbuild the 
health, education, morals, industry and living standards of the less 
fortunate in their communities, as well as providing the necessities of 
food, shelter and clothing. Space will not permit detailed discussion 
of each of these counties and they all differ in some branches of their 
relief methods. It is proposed, however, to summarize briefly the out¬ 
standing features of procedure in certain of these progressive counties. 

Alameda County. 

Outdoor relief in Alameda County is administered chiefly through 
the office of the Oakland Associated Charities and the Berkeley Charity 
Organization Society. Both of these societies are private relief agencies 


COUNTY OUTDOOR RELIEF. 


23 


and the county work which they handle is simply an additional amount 
of relief work which they have assumed for the community. The Oak¬ 
land society, however, is the only official and salaried agent of the 
county. Formerly all county relief applicants were referred to this 
society for investigation, but as these increased in number an arrange¬ 
ment was made whereby those applicants residing in Berkeley should 
be handled by the Berkeley agency. For its work the latter society 
receives no compensation. One other society has been authorized to do 
some of the county outrelief work. This is the Catholic Ladies’ Aid 
Society which has power to investigate and recommend aid in emergency 
cases. Dependent children are also committed to this agency for super¬ 
vision and placement by order of the Juvenile Court. 

Thus, in Alameda County, the public outdoor relief is administered 
by three private agencies which employ trained social workers to handle 
the cases. 

Los Angeles County. 

Los Angeles is one county of the state which has a county charities 
office on a scale approaching modern private relief agencies. The 
administration of county relief, both outdoor and institutional, is under 
the supervision of the superintendent of charities. The outdoor relief 
division is one department of the county charities department and is in 
charge of a special director and a staff of approximately twenty trained 
visitors, including several social service nurses. Good co-operation 
is maintained with the county and city public health departments and 
with the education authorities. Another feature of the work which is 
worthy of special mention is the follow-up work by correspondence; 
the office keeps in close touch with relatives, friends and employers of 
its wards and with the families themselves when they move away from 
Los Angeles County. This supervision by correspondence is not in the 
nature of a detective agency, but is done in a friendly, helpful spirit. 

Fresno County. 

Fresno County is typical of the group of counties where public senti¬ 
ment has crystallized into a demand for co-ordination of all county 
social service under centralized control. In the counties cited above 
where modern methods of relief are being introduced, the county relief 
agency is more or less restricted in its scope. Fresno County, in 1915, 
appointed an unpaid county commission to which was given the admin¬ 
istration of county outrelief. This commission, known as the Fresno 
Relief and Employment Commission, was appointed by the Board of 
Supervisors and provided with office equipment and the services of two 
trained workers. The work of this commission and its agents proved 


24 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


so successful in eliminating waste and giving better service to the poor 
and the sick of the county, that in 1917 the supervisors and the general 
public of Fresno County desired to enlarge its powers and duties. The 
State Board of Charities and Corrections was requested to make a 
study of the county conditions and suggest a definite plan for such 
reorganization. The findings of the survey showed that modern meth¬ 
ods of investigation, supervision, record and constructive treatment 
as introduced by the Fresno Relief and Employment Commission had 
restored many dependent families to self-support; that families 
dependent through illness had been helped to independence by timely 
medical aid; old persons who had been on the county list for years 
were removed by aid from children or relatives with whom correspond¬ 
ence had been opened; that good co-operation had been obtained from 
county and private agencies for health, education, relief and other 
welfare activities. It was found, however, that there was need for 
closer and more systematic connection with the various county depart¬ 
ments dealing with dependents in order that full information might be 
available in working out a plan for treatment. Family cases were 
found where no less than three to five county departments were deal¬ 
ing with the members of the same family. One family was cited which, 
at the time of the survey, was receiving help from the county in the 
following manner: the father was in the county jail for drink and 
nonsupport, one child was in the county orphanage, one child in the 
county hospital, and the mother receiving aid from the County Relief 
Commission while awaiting her confinement. Another family was 
receiving emergency aid in groceries while the father was in San 
Quentin, one boy was under the supervision of the probation officer, 
one child in the county orphanage, and several members of the family 
had received medical care in the county hospital. Instead of being four 
problems, this family should be treated as one. While it was evident 
that all the county departments were doing their duty, it was also 
evident that a definite policy of co-ordination and direction would make 
for greater efficiency and economy in the handilng of county 
dependents. 

It was decided therefore that Fresno County should create a county 
department under which should be placed the investigation and super¬ 
vision of all problems affecting the poor and the sick of the county; 
this was finally enlarged to include all public welfare questions which 
concerned the citizens of the county. The Board of Supervisors con¬ 
sulted with the social workers of the community and the following 
ordinance was passed in December, 1917: 


COUNTY OUTDOOR RELIEF. 


25 


An Ordinance Creating a Department of Public Welfare and Prescribing 
Its Powers and Duties. 

The Board of Supervisors of the County of Fresno, in the State bf 
California, do ordain as follows: 

Section 1. A department of county work is hereby created to 
be known as the Fresno County Department of Public Welfare. 
Said department shall consist of six members, four of whom shall 
be appointed by the Board of Supervisors and two shall be ex officio 
members, to wit: Two members of the County Board of Supervisors 
selected by that body. The term of office of each appointed mem¬ 
ber shall be for a period of six years, except as hereinafter specified, 
subject to the power of the supervisors to remove for cause any 
member of the department. The members of the department shall 
serve without salary. 

Sec. 2. As soon as the members of the department are appointed 
they, shall be divided by lot into three groups; the first group shall 
consist of one member; the second group of two members, and the 
third group of one member. The term of office for the first group 
shall end on the first Tuesday after the first Monday in January, 
1920; the term of office of the second group shall end on the first 
Tuesday after the first Monday in January, 1922 ; and the term of 
office of the third group shall end on the first Tuesday after the first 
Monday in January, 1924. 

Sec. 3. When a vacancy shall occur in the department other 
than by expiration of term, the Board of Supervisors, upon recom¬ 
mendation of the department, shall make an appointment for the 
unexpired term. 

Sec. 4. Whenever in this ordinance the word “department” is 
used, it shall mean the Department of Public Welfare. The word 
“board” shall mean the Board of Supervisors. 

Sec. 5. The work of the department shall be divided into three 
general divisions, to wit: Relief, health, children. 

Sec. 6. The powers and duties of the department shall be as 
follows: 

( a ) To appoint a secretary and such assistants as may be deemed 
necessary to carry on the work of the department. The secretary 
shall be the executive officer of the department in charge of its 
work, and shall not be one of the members of the department. The 
salaries of the secretary and assistants shall be fixed by the depart¬ 
ment, and, together with expenses, shall be approved and allowed 
in the usual way by the board. 

(b) To investigate, determine and supervise the giving of relief 
to all persons applying for county aid to devise ways and means of 
restoring them to self-support where possible. 

(c) To act in an advisory capacity over the county hospitals, the 
county almhouse and the county orphanage. 

(d) To investigate, determine and supervise the family homes 
where children may be boarded; standards of investigation, care 
and record to be in accord with those required by the State Board 
of Charities and Corrections with which board co-operation shall be 
maintained. For the purpose of carrying out the provisions of this 


26 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


section, the department shall be authorized to receive children on 
commitment from the juvenile court under section 8 of the juvenile 
Court law. 

(e) To investigate all charities dependent upon public appeal or 
general solicitation for support and to file semiannually its report 
thereon with the board and with the State Board of Charities and 
Corrections. 

(/) To co-operate with the juvenile court, the probation office 
and the probation committee, and to act as a co-ordinating agency 
for all relief and other welfare societies in the county. 

Sec. 7. Applications for relief made to the board or to any 
member of the board must be referred immediately to the depart¬ 
ment. 

Sec. 8. The department shall file with the board each month 
prior to the meeting of the board a report of all work done. No 
expense incurred by the department shall be paid by the county 
except upon presentation of verified demands approved by the 
secretary of the department. 

Sec. 9. The department shall make all needful rules and regu¬ 
lations for the transaction of its business. 

Sec. 10. All ordinances and parts of ordinances in conflict here¬ 
with are hereby repealed. 

Sec. 11. This ordinance shall take effect and be in force from 
and including the first day of January, 1918. 

The members of the commission were selected from prominent citizens 
who are interested in different branches of welfare work. The two 
members of the Board of Supervisors who sit with the department are 
also members of the Supervisors’ Committee on County Hospital and 
Orphanage. The president of the department is a leading journalist, 
the chairman of the health division is a physician of high standing, the 
chairman of the relief division is a prominent clergyman, and the 
children’s division is under the direction of the two women members of 
the department who are both clubwomen and active in private charitable 
organizations. The detail work of each division is worked out by these 
directors but no question of policy is taken up except at meetings of the 
entire department. The staff of paid workers consists of an executive 
secretary, an assistant secretary, a child welfare nurse, and a stenog¬ 
rapher. With the exception of the executive secretary, these workers 
are women. All have had special training for their work. Under the 
leadership of the child welfare nurse a boarding-out system for home¬ 
less children is being developed and a children’s clinic has been estab¬ 
lished. The health division works closely with the county hospital and 
with the city and health authorities. The relief division carries on the 
outrelief work of the county and co-operates with the other county 
departments and with private agencies. The following chart shows the 
organization of the public welfare department for administration of its 
various duties: 


COUNTY OUTDOOR RELIEF. 


27 


Board of Supervisors of Fresno County. 


Department of 

Public Welfare. 









Division 

of 

County Outrelief 


Division 

of 

Health. 


Division 

of 

Children’s Work. 

(County aid to poor 
in their homes.) 


(County Hospital, 
County Alms¬ 
house, Preventive 
and curative 


(County Orphanage, 
Family board i n g 
homes and other 
work for children.) 


measures in homes 
and in institu¬ 
tions.) 

Case histories taken from the files of the Fresno Department of 
Public Welfare, Outrelief Division, which illustrate the constructive 
methods which have been used in that county for the past year: 

Families removed from county list by communication with relatives. 

1. The C. family. This woman had four children and was deserted by her second 
husband. The first husband (deceased) had left a fairly good little farm to her 
and to his three children; she married a worthless man who mortgaged the farm, 
took the money and left her with a young baby in arms. She applied to the county 
office for aid. Her first husband’s brother was interviewed by the relief agent and 
promised to straighten out the legal tangle so as to save the farm for his brother’s 
children. This he has done and the family will probably be removed from the county 
aid list this month. 

2. Mrs. B. An old woman of 70 years who has seven sons and daughters but none 
living with her at time of application for aid. Letters were written to her children 
and a plan made for the old mother to go to one of her married daughters who 
would give her a home; the other children agreed to contribute toward her support. 
These children had all neglected the old mother for years and would not have taken 
care of her unless very strong letters were written them, which was done. Under 
the old relief system this woman had been receiving county aid of $15 per month 
for a long time. County aid is now discontinued, as her children are well able to 
support her and are now doing so. 

3. Mr. S. A man of 52 years who was rendered blind by an accident. He refused 
to go to the county almshouse. Is able-bodied and prefers to do some work. Has a 
brother in one of the middle west states but did not want to go there. Correspondence 
with this brother brought a regular contribution of $15 per month which, with the odd 
jobs that Mr. S. can do, supports him. He is living in a shack, rent free. County 
aid has been withdrawn. 

Families restored to self-support by timely medical aid. 

1. The H. family. Father, mother and six children. Immediate causes of depend¬ 
ency—illness, insufficient earnings and temporary desertion. The family sought aid 
because the man was irregularly employed and unable to provide for family; woman 
was sick in bed and all of the children underfed and ailing. The man seemed lazy 
and would not stay at any work. He deserted for two months, but was brought 
back and put to work and ordered to pay $25 toward family expenses. Children 
taken to county hospital for treatment, one with bad eyes, two oldest girls incipient 
tuberculosis. The girls were placed in tubercular ward and three youngest children 










28 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


temporarily put into the county orphanage to relieve the mother of their care. Four 
months later, the mother called at the relief office, much improved in health ; reported 
that she and the father were living together and wanted the children restored to 
their home. Man working and home established. The oldest girls were discharged 
from the hospital so much improved that they looked like different children. The 
two boys had been in the hospital for minor operations, but were entirely cured. 
All the children in much better health than formerly. Family now reunited and 
self-supporting. County still aids with some groceries, but will soon be able to 
withdraw help entirely. 

2. The A. family. This family came to notice of the county relief office by report 
from the county hospital that the man was in tubercular ward and worried about 
his family. Has a wife and three children. A visit was made to the home, where 
the wife was found to be a very nice little woman and good mother. Regular county 
aid was granted until man should be able to work. With this worry off his mind, 
the man began to improve and within two months was discharged from the hospital, 
able to work half time, but still coughing. A bed was arranged in the back yard 
and visiting nurse gave instructions for him to follow. He was anxious to give up 
the county aid, but was persuaded to let it continue for milk and groceries. Nurse 
visited regularly and saw that her instructions were observed. Home very clean. 
Entire family taken to hospital for observation. Children found to be in good 
health. After five months, the man was permitted to accept work for full time, 
earning $3 per day. He still goes to the tuberculosis clinic weekly. Aid reduced to 
milk supply. The man was told to report promptly if not well and aid would be 
renewed. The family is now doing well and the county aid will be withdrawn entirely 
in the spring if present conditions continue. 

Family aided to self-support 6 y legal advice. 

1. The L. family. Mother and six children deserted by the father. They had 
started to buy a small ranch. Only a few payments had been made when the father 
deserted his wife and children. This left the wife with the little farm, a debt of 
$1,700, six young children to support and no income. The family became destitute 
and appealed to the county for help. Temporary aid was extended the family and 
a plan worked out for the future. The relief commission interested a business man 
and a lawyer in the case and through the help of these men the ranch was appraised 
by a local bank ; the ranch was sold and after paying the mortgage there was $1,000 
clear for the woman and her children. The money thus obtained was placed out at 
interest and the mother paid $25 per month from this sum. The entire amount was 
not given to her at once, as it was felt that she might not be able to keep it. The 
county will contribute a small additional amount each month for a year or two until 
the oldest children can make a living for the family. They have been placed in a 
rented house on a regular income, and private parties have been induced to send milk 
regularly for the younger children. In the mean time the police are trying to find the 
deserting father. 


COUNTY OUTDOOR RELIEF. 


29 


San Francisco County. 

San Francisco County grants no public outdoor relief to adults. 
These cases are relieved either by private relief agencies or in public 
institutions. 

The only public outrelief in San Francisco County, therefore, is that 
given to children. There are two types of children’s aid which must 
be considered. The first of these is state and county aid while the 
second is county aid only. 

For the administration of state and county aid to orphan children 
San Francisco County has established what is called the “Widows 
Pension Bureau.” The work of this bureau has attracted much atten¬ 
tion. For this reason a brief account of its methods and procedure is 
included at this point. 

THE WORK OF THE WIDOWS PENSION BUREAU OF SAN FRANCISCO 

COUNTY. 

I. Establishment of the bureau. 

The San Francisco County office for the administration of state and 
county aid to half orphans living with their mothers was created in 
September, 1913, by an act of the board of county supervisors. Previ¬ 
ous to 1913, San Francisco County through its Juvenile Court was 
boarding half orphans with own mothers or in foster homes, paying for 
their care at the rate of $11 per month per child where necessary. In 
cases where the child was not legally eligible for state aid the entire 
amount has been borne by the county. Having proved, by practical 
demonstration, the preventive and constructive value of maintaining 
the integrity and standard of the home, San Francisco County was one 
of the first to take advantage of the new clause in the state law— 
Chap. 323, Cal. Stats. 1913. In September, 1913, the county appro¬ 
priated a definite sum for supplemental county aid to widowed mothers 
with small children and for the necessary running expenses of the 
“Widows Pension Bureau.” The county appropriation has since been 
renewed, annually, at the close of each fiscal year and the amount 
increased as the exigencies of the situation required. 

II. Administration. 

The officers of the bureau are, respectively, (1) director, (2) assistant 
director, (3) social service visitor, and (4) clerk. 

III. Investigation. 

There is a preliminary investigation ‘ by the clerk at the time the 
application is made. This usually brings out any clear cause for 
disqualification, such as lack of evidence bearing on residence, marriage, 
death of husband, age of children, property or income above the limit 
set by the State Board of Control and the county bureau etc. It is 


30 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


State /ndustr/a.L 
Soc/dent Commission 


state Boa/d or 
cOar/t/es a Cor reckons 


state /odor 
Comm/ss/on 


State /mm/grat/on 
a ffoizs/ng Commission 




tresao Coonto Department of PoOZ/c We/tare 

t/ea/ttL 


ffe/Ser 


Otf/Zdren 



estimated that about one-fourth of the total number of applicants is 
sifted out by this office investigation as ineligible and their applications 
are not placed on file. The social service visitor is given the list of new 
applications as filed each month, and after districting them, makes the 
first call on the family. At this time she secures the proper legal evi¬ 
dence, a financial statement of the holdings and income of the family 
together with facts concerning any outstanding mortgages or other 
debts; social data regarding the parents and children; the housing, rent, 
upkeep and equipment of the home; whether any roomers, boarders or 
tenants; physical and mental conditions of members of the household; 
moral atmosphere; names of relatives and of three citizens as refer¬ 
ences. These relatives and references are communicated with and where 
there is any evidence of resources within the family circle, these are 
utilized. The records of the various social agencies are searched for 
any history of previous aid given the family and there is good co-opera¬ 
tion between the bureau and the other charitable organizations of the 
community. 
























COUNTY OUTDOOR RELIEF. 


31 


IV. Supervision. 

After the granting of aid, the assistant director of the bureau visits 
the family and keeps in touch with changing conditions. An average of 
three visits per year are made to each family. Where there are wage 
earners in the family, the amount of public aid is decreased in propor¬ 
tion as their earnings increase, until, eventually, as the family becomes 
self-supporting, the pension is withdrawn entirely. The visitor also 
watches over the physical and moral welfare of the family, obtaining 
hospital care for the sick, improved housing conditions, etc. Employ¬ 
ment is also a problem that confronts this visitor, but, with a large 
and growing list of families to be visited, she has not the time to deal 
adequately with this important question. An average of 100 visits 
per month to families is maintained, not including visits to landlords, 
schools, clinics, employers and other necessary calls. 

V. Records. 

The records of the bureau are complete and well kept. The system 
includes: (1) An application book in which all applications are entered 
as received, chronologically, with date and memorandum of the disposi¬ 
tion of the case; (2) card catalogue of all applications recommended for 
aid; (3) legal evidence file; (4) vertical file of all cases handled, com¬ 
monly called the “Case History File,” containing the report of the 
investigator and all correspondence connected with the case. In addi¬ 
tion to these, there is a district book and map showing the location of 
each family that is receiving state aid. There are also ledgers in 
which are kept accounts with the individual families showing amount 
and date of relief. 

VI. Basis of eligibility and relief. 

The law sets certain restrictions around the granting of state aid to 
applicants, but the principal factor in determining whether or not a 
family is entitled to aid and the most difficult to define is “evidence of 
need.” This is not defined by the law nor can it be, for the reason 
that the standards vary and conditions are constantly changing. For 
the purpose of having some working standard, the San Francisco bureau 
has established the following basis of need in this community: For a 
family of three or less a minimum income of $15 per person per month 
is necessary, for families of more than three, $10 per person per month 
and an additional $10 for house expense. For instance, a family of four 
children and mother, a total of five, would need an income of $60 per 
month to maintain a decent standard of living in a normal American 
home. When there are wage earners in the family, their wages are 
deducted from the minimum income and aid is recommended for the 


32 


STATE BOARD OF CHARITIES AND CORRECTIONS. 


net amount or deficit. Another important requisite in determining the 
basis of eligibility is “good moral atmosphere.’’ In* cases of drink or 
immorality in the home the aid is not granted through the Widows 
Pension Bureau, but the families are referred to the Juvenile Court 
where there is better machinery for dealing with delinquency. 

The basis of relief naturally relates itself to the basis of need. As 
stated above, a minimum income of $10 per person being taken as a 
starting point, the deficit in the family income is met as nearly as pos¬ 
sible by the grant of state and county aid. Where this is inadequate 
and there are older children working, an effort is made to help them to 
increased wages. Employers are usually very considerate of half 
orphans in their pay. However, boys and girls of 15 to 18 years old 
are not very efficient workers as they are virtually in training and their 
services are not worth more than small wage. 

VII. Amount of aid given and method of distribution. 

Amount of aid given. San Francisco County supplements the state 
aid to the amount of $4.75 per child when, in the judgment of the inves¬ 
tigator, it is needed. In some cases, the amount of county aid is $6.25 
per child, which is the maximum amount named in the law. The 
average amount of aid given, per family, is $22 per month. 

Method of distribution. The checks are distributed through the three 
social agencies of the community, viz: the Children’s Agency of the 
Associated Charities, the Catholic Humane Bureau and the Hebrew 
Board of Relief. - r !li j 


NEXT STEPS FOR CALIFORNIA COUNTIES. 

Intelligent, constructive treatment of its dependents is a county prob¬ 
lem than which there is none more important in relation to the future 
welfare of the community. To plan wisely involves a knowledge of the 
facts concerning each individual case so that the best remedy can be 
applied. Good relief work is not palliative but curative. The advan¬ 
tage of public relief over that administered by private agencies lies in 
its possibilities for wider outlook and abilities to correlate better the 
needs and resources of the community. 

To make effective this advantage and at the same time safeguard it 
from perils of misuse or loss of personal interest, there should be at 
least one trained social worker connected with the relief work in each 


COUNTY OUTDOOR RELIEF. 


33 


county. A program for future progress in county government should 
work toward these objectives: 

1. Trained workers as 

a. Probation officers. 

b. Relief agents. 

c. Hospital superintendents and employees. 

d. Health officers. 

2. Organization of the county social work: An unpaid commission 

or department to appoint paid employees and handle all public 
relief and welfare problems. 

3. Co-operation. 

a. Between county and state authorities. 

b. Between probation, relief, health, and child welfare agencies 

in the county. 

c. Between counties; e. g., joint tuberculosis sanatoria, prison 

camps, health officers, transportation of indigents, etc. 

4. Budget system: A modern system of budgeting county expendi¬ 

tures, apportioning adequate amounts to the various social 
agencies. 

5. Employment of prisoners: On roads, levees, farms, quarries, etc., 

by single counties or by groups of counties and cities. 

6. Boarding homes for children: Development of a boarding-out 

system of supervised foster homes through relief officers, juve¬ 
nile courts, and private charities. 

7. Charities endorsement: Control, of all appeals made to the public 

for philanthropic purposes. 

8. Extension of Health Service. 

a. Co-operation with other counties to secure trained health 

officers and visiting nurses; and to put into effect preventive 
public health measures such as those pertaining to isolation, 
sanitation, housing, etc. 

b. Out-patient work in county hospitals, county clinics and dis¬ 

pensaries ; care of the sick in their own homes. 

c. Intelligent and humane treatment of the tubercular. 

9. Humane care of the insane by 

a. Detention in hospitals instead of jails. 

b. Examination by expert alienists. 

c. Treatment of incipient cases. 

d. Informal court hearing in hospital. 

e. Transportation by trained attendants. 

10. Full-time service of hospital superintendents, physicians, relief 

agents, probation officers, and other social workers so far as the 
extent of the work in the several counties demands. 

11. Merit system of appointment, taking social service out of politics. 

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